Английский язык профессии «Государственное управление и менеджмент»

English for Experts in Public Sector Governance and Management

Учебник

Под общей редакцией
кандидата филологических наук
М. В. Хлопковой

ebooks@prospekt.org

Информация о книге

УДК 811.111(075.8)

ББК 81.432.1-9

А64

Авторы:

Хлопкова М. В., кандидат филологических наук, доцент МГИМО МИД России;

Селезнева В. В., кандидат филологических наук, доцент МГИМО МИД России;

Ломакина О. О., кандидат экономических наук, доцент МГИМО МИД России;

Иксанова М. Г., старший преподаватель МГИМО МИД России.

Рецензенты:

Ваничкина А. С., кандидат филологических наук, доцент МГЛУ;

Бунакова Т. А., кандидат педагогических наук, доцент МГИМО МИД России.

Учебник предназначен для студентов II и III курсов бакалавриата факультета управления и политики МГИМО МИД России направления «Государственное и муниципальное управление», изучающих английский язык как второй иностранный. Может быть использован в вузах гуманитарного профиля.

Целью учебника является развитие профессиональной коммуникативной компетентности обучающихся по данному направлению до уровней владения иностранным языком B2 – C1.

УДК 811.111(075.8)

ББК 81.432.1-9

© Коллектив авторов, 2025

© ООО «Проспект», 2025

ПРЕДИСЛОВИЕ

Настоящий учебник «Английский язык профессии «Государственное управление и менеджмент». English for experts in public sector governance and management» предназначен для студентов второго курса бакалавриата направления «Государственное и муниципальное управление», изучающих английский язык как второй иностранный, и ставит целью дальнейшее комплексное развитие профессиональной коммуникативной компетентности обучающихся по данному направлению до уровней владения иностранным языком B2 — C1, что позволит сформировать и развить профессионально ориентированные базовые иноязычные и переводческие компетенции, а также выработать и закрепить навыки зрительно-устного и зрительно-письменного перевода текстов по специальности из аутентичных источников.

Учебник подготовлен в соответствии с программой дисциплины «Иностранный язык международного общения» «Английский язык» уровень — бакалавриат, разработанной на кафедре английского языка № 6 МГИМО МИД России, и рассчитан на 146 аудиторных часов.

В основе учебника лежат следующие принципы: принцип компетентностного подхода, предполагающий получение базового комплекса знаний, умений и навыков, формирование основ для ведения профессиональной практической деятельности с использованием иностранного языка; принцип дифференцированного подхода, позволяющий выбирать задания такого уровня сложности, который соответствует уровню сформированности компетенций студента; принцип автономности, предполагающий самосовершенствование студента при овладении иностранным языком. Данные принципы реализуются благодаря заданиям различного уровня сложности, а также заданиям, направленным на самостоятельный поиск материала и на формирование навыков планирования и выполнения индивидуальных и совместных работ.

Учебник наряду с лингвистическими компетенциями преследует цель формирования профессиональных компетенций, предусмотренных образовательными стандартами соответствующего направления, предполагающих, что студент:

— способен к абстрактному мышлению, анализу, синтезу;

— владеет политически корректной устной и письменной речью в рамках профессиональной тематики на русском и иностранных языках в пределах уровня В2;

— способен работать с материалами СМИ, составлять обзоры прессы по заданным темам;

— владеет навыками построения реферативного письменного текста и устного представления экспертных мнений по международно-политической проблематике;

— способен находить, собирать и первично обобщать фактический материал, делая обоснованные выводы;

— владеет навыками публичных выступлений как перед российской, так и зарубежной аудиторией.

Предметно-тематическое содержание учебника спроектировано в соответствии с принципом учета межпредметных связей и включает в себя тематический материал, изучаемый в рамках предметов курса бакалавриата по направлению «Государственное управление».

Все тексты отражают актуальные проблемы в рамках предложенной тематики. По каждой теме разработан аппарат упражнений, направленных на дальнейшее развитие навыков аналитического чтения, расширение словарного запаса и совершенствование навыков ведения дискуссии.

Материал и задания подобраны и составлены таким образом, что в процессе параллельного обучения всем видам речевой деятельности происходит формирование в рамках профессионального контекста иноязычных коммуникативных компетенций, включающих в себя прежде всего лингвистическую компетенцию.

В соответствии со статьей 1274 Гражданского кодекса Российской Федерации, авторы данного учебника использовали в своей работе с обязательным указанием имени автора, произведение которого используется, и источника заимствования правомерно обнародованные произведения и отрывки из них в качестве иллюстраций (в широком смысле) в объеме, оправданном поставленной целью или методикой.

МЕТОДИЧЕСКАЯ ЗАПИСКА

Учебник состоит из восьми разделов, каждый из которых разделен на две части. В первой части предлагается материал по тематике государственного управления, а во второй части — менеджмента. Данная подача учебного материала продиктована особенностями рабочей программы изучаемой дисциплины факультета управления и политики МГИМО МИД РФ.

Каждый раздел начинается с задания Lead-in, выполнение которого дает возможность актуализировать знания студентов по изучаемой тематике и подготовить их к работе с текстами. Далее предлагается текст, обязательный для изучения, с последующими заданиями, направленными на понимание и осмысление текста, развитие умений анализировать, структурировать и систематизировать материал, а также устанавливать логические связи. Эти задания могут выполняться как на занятии, так и самостоятельно с последующей проверкой в аудитории.

После изучения базовых текстов предполагается их реферирование с целью развития у студентов умения выделять основные идеи, обобщать полученную информацию и делать смысловую компрессию текста.

Послетекстовые задания направлены на расширение словарного запаса, при этом особое внимание уделяется умению передать мысль различными лексическими и синтаксическими средствами. По каждой теме разработан блок упражнений на закрепление глоссария.

Разделы учебника разработаны таким образом, чтобы преподаватель мог выбирать задания в соответствии с уровнем группы. В сильных группах можно использовать весь спектр упражнений, направленных на решение различных задач, поставленных преподавателем: дополнительные тексты на реферирование, лексические упражнения, задания на переводческие трансформации, презентации, дискуссии. Здесь темп прохождения материала может быть быстрее.

В слабых группах стоит уделить больше внимания разбору и изучению текстовых заданий и сконцентрироваться на реферировании текстов.

В предлагаемом учебнике все учебные задачи решаются не в последовательном порядке, а комплексно, т. е. предполагают одновременную работу над формированием различных иноязычных коммуникативных и лингвистических компетенций. Таким образом, нет необходимости выполнять все задания учебника подряд. Преподаватель сам определяет темп и объем прохождения материала в зависимости от уровня группы.

В каждом разделе представлены темы для презентаций. Подготовку к презентации рекомендуется проводить в два этапа: на занятии, где студенты знакомятся с темами, обсуждают план работы, проводят дискуссии, которые дадут им основу для дальнейшей работы дома, и собственно индивидуальной работы дома. В конце учебника есть руководство по выполнению задания (Appendix 1).

Важное место в учебнике занимают неподготовленные монологические высказывания по тематике урока — Impromptu Talks. В силу особенностей формата — направление развития темы, ограниченное время на обдумывание и презентацию, отсутствие опор и возможности делать записи — студенты нередко испытывают трудности с выбором стратегии построения высказывания и композиционной структурой. Высказывания могут быть не всегда последовательны, логичны, достаточно развернуты и могут даже не соответствовать заданной теме. В этой связи на начальном этапе выполнения такого задания рекомендуется, если это оправдано условиями работы в конкретной группе студентов, увеличить время на обдумывание и собственно высказывание, а также уделять больше внимания анализу выступлений, вовлекая самих студентов в обмен мнениями. Для выполнения данного задания авторы разместили в Appendix 2 руководство по ведению импровизированного выступления.

Для выработки навыка краткого изложения статьи, реферирования и написания аннотации авторы предлагают следовать плану, изложенному в Appendix 3, где помимо инструкций представлены еще и образцы выполненных заданий по аннотированию статей.

Промежуточная аттестация может проводиться как в устном формате — реферирование статьи по теме раздела и зрительно-устный перевод фрагментов текстов по изученной тематике, так и в письменном — перевод статьи объемом до 1200 знаков с английского языка на русский, а также написание аннотации. Для проверки активного словаря преподаватель может проводить короткие опросы в течение всего семестра. Критерии оценки основных видов работ даны в Appendix 4. В качестве контрольно-измерительных материалов для промежуточной аттестации можно брать фрагменты текстов из раздела Text Bank в конце учебника.

UNIT 1

Lead-in

• What do you know about ‘Public Administration’? What does the term refer to?

• Is ‘Public Administration’ the same as ‘Public Management’?
Prove your point of view.

• Which of the following aspects of General management are, in your opinion, most important for Public administration? Why?

Strategic management • Performance management • Risk management • Personnel management • Financial management • Time management

Part 1. THE TRADITIONAL MODEL OF PUBLIC ADMINISTRATION

Ex. 1. Match up the words from the text given below to their Russian equivalents.

Government policy, public safety, public goods and services, establishment, private goods and services, public programs, the public good.

a) ............................................. | общественное благо
b) ............................................. | частные (индивидуальные) блага
c) ............................................. | общественные блага/товары и услуги
d) ............................................. | общественная/государственная безопасность
e) ............................................. | государственные программы
f) ............................................. | политика, курс, план действий правительства
g) ............................................. | учреждение, организация

Ex. 2. Skim the text below to find out:

• what Public Administration is linked to;

• what the Public Administration sector consists of;

• what establishments in this sector typically are engaged in.

Skimming is a high-speed reading technique to get the gist of written material that can save you time and help you get through a text quickly. To skim is to pass quickly over material — as quickly as you can — while getting a general, holistic view of the content.

Read the definition of Public Administration. Comment on the fragments in italics. Translate them into Russian.

Public Administration

Public Administration can be broadly described as the development, implementation, and study of government policy. Public Administration is linked to pursuing the public good by enhancing civil society and social justice. Though Public Administration has historically referred to government management, it increasingly encompasses non-governmental organizations that are not acting out of self-interest.

The Public Administration sector consists of establishments of federal, state, and local government agencies that administer, oversee, and manage public programs and have executive, legislative, or judicial authority over other institutions within a given area. These agencies also set policy, create laws, adjudicate civil and criminal legal cases, provide for public safety and for national defense.

In general, government establishments in the Public Administration sector oversee government programs and activities that are not performed by private establishments. Establishments in this sector typically are engaged in the organization and financing of the production of public goods and services, most of which are provided for free or at prices that are not economically significant.

Government establishments also engage in a wide range of productive activities covering not only public goods and services but also individual or private goods and services similar to those produced in sectors typically identified with private-sector establishments.

Source: Wikipedia, the free encyclopedia

Ex. 3. Match the verbs from the text in the left column to their meanings in the right column; give their Russian equivalents.

1) administer | a) be composed (of); be formed (of)
2) adjudicate | b) seek or strive to attain
3) consist of | c) supply means of support
4) encompass | d) direct or control
5) engage in | e) arbitrate, to give a decision (on)
6) enhance | f) watch over and direct; supervise
7) oversee | g) take part; participate
8) provide for | h) intensify or increase; improve
9) pursue | i) include entirely or comprehensively

Ex. 4. Comment on the meaning of the phrases/sentences in italics in the text above.

Ex. 5. Scan the text below to find the relevant information supporting or contradicting the following statement: ‘administration is a narrower and more limited function than management’.

Administration and Management

The words ‘management’ and ‘administration’ are close in meaning, but a brief foray into semantics allows a case to be made that the terms ‘management’ and ‘administration’ are significantly different and that a manager performs a different role from an administrator.

The Oxford Dictionary defines administration as: ‘an act of administering’, which is then ‘to manage the affairs of’ or ‘to direct or superintend the execution, use or conduct of’, while management is: ‘to conduct, to control the course of affairs by one’s own action, to take charge of’. The Latin origins of the two words also show significant differences. Administration comes from minor then ministrare, meaning: ‘to serve, and hence later, to govern’. Management comes from manus, meaning: ‘to control by hand’. The essential difference in meaning is between ‘to serve’ and ‘to control or gain results’.

From these various definitions it is argued that administration essentially involves following instructions and service, while management involves: first, the achievement of results, and secondly, personal responsibility by the manager for results being achieved. The terms administration and management are not synonymous, neither is their application to the public sector. Public administration is an activity serving the public, and public servants carry out policies derived from others. It is concerned with procedures, with translating policies into action and with office management. Management does include administration, but also involves organization to achieve objectives with maximum efficiency, as well as genuine responsibility for results.

It follows that a public service based on administrative concepts will be different from one based on management and there are continuing and unresolved tensions between the two views.

Source: condensed from http://do.gendocs.ru/docs/index-206555.html

Ex. 6. Skim the text below to find out:

• when Public administration as both theory and practice began;

• what Public administration used to be.

Find the words in bold italics marked by reference figures in the Key Terms and Common Collocations section. Study their meanings and the word collocations they form. Comment on the fragment in italics. Translate it into Russian.

Public Administration as Theory and Practice

What is here called the traditional model of public administration (1) was once a major reform movement. Where previously amateurs bound by personal loyalties to leaders carried out public administration, the task became a professional occupation which was carried out by a distinct merit-based public service (2). Serving the public at the time was a high calling, one that required the best people available to form a distinct administrative elite and to act always according to the law and established precedents. Politicians might come and go but, while the apparatus of government was in the hands of permanent officials (3), the transition between regimes could be handled smoothly. Public administration as both theory and practice began in the late nineteenth century, became formalized somewhere between 1900 and 1920, and lasted in most Western countries largely unchanged until the last quarter of the twentieth century.

The traditional model can be characterized as: an administration under the formal control of the political leadership, based on a strictly hierarchical model of bureaucracy (4), staffed by permanent, neutral and anonymous officials, motivated only by the public interest (5), serving any government party equally, and not contributing to policy (6) but merely administrating (1) those policies (6) decided by the politicians. Its theoretical foundations mainly derive from Woodrow Wilson[1] and Frederic Taylor in the United States, Max Weber[2] in Germany, and the Northcote-Trevelyan Report[3] of 1854 in the United Kingdom.

Key terms and common collocations

1. public administration — государственное управление, управление на государственном и местном уровнях (вид деятельности, который рассматривается как искусство и наука управления государственными делами, особенно вопросами работы с персоналом (кадрами), организации производства и финансов; входит в функции исполнительных органов власти. Отличается по задачам и функциям от управления частной или торгово-промышленной деятельностью (private or business administration)

administrate (v) (Syn: control, check) — управлять; контролировать

administration (n) — 1) управление; ведение (дел), администрирование; руководство; 2) администрация, правительство; 3) исполнительная власть (США); 4) президентство

business administration — ведение дел, управление делами

centralized administration — централизованное управление

colonial administration — колониальный режим

decentralized administration — анархическая форма правления

administrator — администратор, руководитель, управляющий; административное, должностное лицо

board of administrators — дирекция, административный совет

administrative (Syn: managerial) — 1) административный; административно-хозяйственный, управленческий; 2) исполнительный (о власти); правительственный

administrative bill — административное постановление

administrative law — административное право

administrative unit — административно-хозяйственная единица

administrative arrangement — административная структура

administrative process — процесс управления

administrative staff (Syn: administrative personnel) — управленческий персонал, административные работники, администраторы, управленцы

administrative expenses — расходы на административные нужды, управленческие расходы

administrative authority (Syn: administrative power, executive power) — административные полномочия, административная власть (права, предоставленные должностному лицу или учреждению органами власти для реализации программ и исполнения решений органов власти); административный орган

administrative facilities (Syn: administrative service) — 1) административные помещения и оборудование (материально-технические средства, используемые для работы управленческого персонала); to underestimate space requirements for administrative facilities — недооценить потребность в административных помещениях; 2) административные службы (выполняют распорядительские функции [напр., на предприятии — бухгалтерия, секретариат, отдел кадров и т. п.])

administrative machine (Syn: machinery) — административный аппарат (систематизированная совокупность органов, учреждений и институтов, осуществляющих функции управления в какой-л. сфере человеческой деятельности)

administrative official — должностное лицо с административными функциями; администратор; чиновник административной власти

administrative procedure — 1) административная процедура, административный порядок; административное производство; административный процесс (официально установленная последовательность действий при рассмотрении и разрешении текущих дел в органах государственного управления и на предприятиях); 2) порядок управления делами (совокупность административных процедур на предприятии или в государственном органе)

administrative practice — административная практика (устоявшийся порядок и процедуры составления бюджета, делопроизводства и других видов распорядительской деятельности)

administrative activity (Syn: administrative work) — администрирование, административная деятельность (включает формирование и исполнение бюджета, делопроизводство, контроль за процедурами и т. д.)

administrative task — административная задача, задача административного управления (количественно и качественно определенный результат управленческой деятельности, достигнутый в пределах установленного срока)

2. public service (British equivalent: civil service) — 1) государственная служба (вся деятельность, связанная с обеспечением работы государственных органов, особенно в гражданской [а не военной] сфере); 2) а) общественная деятельность, предоставление общественных услуг (обеспечение общества товарами и услугами, осуществляемое государственными или общественными организациями; напр., обеспечение коммунальными услугами [электроснабжение, газоснабжение, водоснабжение], общественным транспортом; некоторые виды социальной помощи и т. д.); б) общественная услуга (напр., коммунальные услуги, общественный транспорт; обычно предоставляется государством); 3) бесплатная (доступная) услуга (бесплатная услуга, призванная помогать людям [напр., услуга справочной службы])

3. official (n) — должностное лицо; чиновник (крупный, влиятельный); служащий (государственный, банковский)

high / high-ranking / top-ranking official — высокопоставленный чиновник, крупное должностное лицо

law-enforcement / police official — полицейский чиновник

appointed official — назначаемое лицо; должностное лицо, принятое по назначению

customs official — таможенный инспектор; представитель таможни

elected official — выборное лицо

federal official — федеральный чиновник

local official — местный чиновник

postal official — почтовый служащий

responsible official — ответственное лицо

government official — правительственный чиновник

public official — публичное должностное лицо, государственное должностное лицо, государственный чиновник

officials — 1) руководители; 2) власти

municipal officials — муниципальные власти

4. bureaucracy [bjʊə´rɒkrəsɪ] — 1) бюрократия (согласно М. Веберу: модель организации, основанная на формальных, обезличенных правилах [положительное свойство современного бессословного общества, в котором все равны перед законом], где продвижение возможно исключительно в силу квалификации; в этой модели присутствует детальная структуризация организации и четкое описание роли каждого ее элемента); бюрократический аппарат; 2) бюрократизм (затягивание решения какого-л. вопроса чиновниками, которые следуют формальным правилам) (Syn: bureaucratism, officialism, formalism, red tape); 3) the bureaucracy — бюрократы, государственные чиновники (социальный слой; не избираемые, а назначаемые должностные лица в структурах власти и управления)

overgrown / swollen bureaucracy — раздутый бюрократический аппарат

government bureaucracy — государственный бюрократизм

bureaucrat [bjʊ(ə)rəkræt] — 1) бюрократ, сотрудник, жестко придерживающийся всех правил, безразличный к интересам других; характеризуется стремлением передавать вопросы на решение начальству, отсутствием инициативы (Syn: formalist); 2) чиновник (должностное лицо органа государственного управления; иногда в уничижительном смысле) (Syn: administrative official, civil servant)

bureaucratic [bjʊ(ə)rə´krætɪk] — бюрократический: а) относящийся к бюрократии или бюрократам. Ex.: You have to follow the correct bureaucratic procedures. — Ты должен строго следовать всем бюрократическим процедурам; б) строго следующий инструкциям, установленным правилам

bureaucratic inflexibility — бюрократическая косность

5. public interest(s) — государственный интерес; публичный интерес; общественный интерес; мн. ч. общественные интересы

6. policy pl. policies — 1) политика, курс (действий), стратегия (методика) поведения (действия) (совокупность принципов, направлений и способов деятельности в определенной области); политический курс (Syn: course, custom, method, practice, strategy); 2) политика (совокупность действий в определенной области, направленных на достижение поставленных целей); 3) система, методика, правила, принципы; нормы, стандарты (Syn: method, order, scheme, practice, procedure, code, custom)

policy group — группа по выработке политики

party policy — политика партии

to carry out a policy — проводить политику

policy tool — средство проведения политики

nation’s foreign policy — внешняя политика страны

to adopt a policy — принимать курс

to set a policy — устанавливать политику

to adhere to / follow / pursue a policy — следовать политике

to carry out / implement a policy — проводить политику

to formulate a policy — формулировать политику

to form / snape a policy — вырабатывать политику

policy making — выработка тактики; разработка, проведение политического курса, политики

under the new policy (policies) — в соответствии с новыми правилами

admission policies — правила приема

evaluation policies and procedures — основные принципы и порядок проведения аттестации

credit policy (Syn: loan policy, lending policy) — кредитная политика (на уровне государства: ограничение на объемы банковского кредитования с целью воздействовать на темпы роста экономики)

domestic policy — внутренняя политика

fiscal policy (budgetary policy) — фискальная (налогово-бюджетная) политика (политика правительства в области налогообложения и государственных расходов; является инструментом регулирования экономики)

incomes policy — политика доходов

public policy — государственная политика

policymaker — 1) высшее должностное лицо, высокопоставленный политик; a top policymaker in president’s inner circle — высокопоставленный политик в ближайшем окружении президента; the State Department’s top policymaker — глава отдела Госдепартамента США; 2) тот, кто принимает решения, — government policy makers

Ex. 7. Find in the text English equivalents to the following words and phrases.

1) основанный на достоинствах, заслугах;

2) имевшие место прецеденты;

3) правительственный аппарат;

4) политическое руководство.

Ex. 8. Paraphrase the expressions and then translate them into Russian.

1) a major reform movement;

2) merit-based public service;

3) serving the public … was a high calling;

4) a strictly hierarchical model of bureaucracy;

5) permanent, neutral and anonymous officials;

6) motivated … by the public interest.

Ex. 9. Read the text in detail and be prepared to speak on the following points.

• Why is the traditional model of public administration being replaced now?

• What are the fundamental principles of traditional public administration?

Fundamental Principles of Traditional Public Administration

The traditional model of public administration remains the longest standing and most successful theory of management in the public sector (1), but is now being replaced. It has not disappeared overnight and elements of it still exist, but its theories and practices are now considered old-fashioned and no longer relevant to the needs of a rapidly changing society. There has been a transformation in the management of the public sectors of advanced countries. The traditional model of public administration, which predominated for most of the twentieth century, has changed since the mid-1980s to a flexible, market-based form of public management (2). This is not simply a matter of reform or a minor change in management style, but a change in the role of government in society and the relationship between government and citizenry (3). Traditional public administration has been discredited theoretically and practically, and the adoption of new forms of public management means the emergence of a new paradigm (4) in the public sector.

This new paradigm poses a direct challenge to several of what had previously been regarded as fundamental principles of traditional public administration.

• The first of these was that of bureaucracy, that governments should organize themselves according to the hierarchical, bureaucratic principles most clearly enunciated in the classic analysis of bureaucracy by the German sociologist Max Weber. Although adopted by business and other institutions, these precepts were carried out far more diligently and for longer in the public sector.

• Secondly, there was one-best-way of working and procedures were set out in comprehensive manuals for administrators to follow. Strict adherence to these scientific management principles (Taylor, 1911) would provide the single best way of operating an organization.

• The third principle was bureaucratic delivery (5); once government involved itself in a policy area, it also became the direct provider of goods and services through the bureaucracy.

• Fourthly, there was general belief among administrators in the politics / administration dichotomy (6), that is, where political and administrative matters could be separated. The administration would be an instrument merely to carry out instructions, while any matters of policy or strategy were the preserve of the political leadership (Wilson, 1941).

• Fifthly, the motivation of the individual public servant (7) was assumed to be that of the public interest; in that service to the public was provided selflessly.

• Sixthly, public administration was considered a special kind of activity and, therefore, required a professional bureaucracy, neutral, anonymous, employed for life, with the ability to serve any political master equally.

• Seventhly, the tasks involved in public service were indeed administrative in the dictionary sense, that is, following the instructions provided by others without personal responsibility for results.

Key terms and common collocations

1) public sector — государственный сектор, обобществленный сектор

2) public management — управление государственными и местными органами; управление на государственном и местном уровне

3) citizenry (old use) — гражданское население, граждане

4) paradigm [pærədaɪm] — парадигма, система взглядов и понятий; научный образец

5) deliver (v) — 1) (deliver on) выполнять (обещание), успешно справляться, добиваться желаемого, обещанного результата; 2) предоставлять услугу

to deliver services — предоставлять, оказывать услуги

delivery (Syn: procurement, supply, provision) — 1) предоставление услуг; 2) питание, снабжение (током, водой), подача (угля и т. п.)

6) dichotomy [daɪ´kɒtəmɪ] — дихотомия, противопоставление двух объектов

7) public servant (British equivalent: civil servant) — государственное или муниципальное должностное лицо; государственный служащий (обычно выборный), чиновник

Ex. 10. Find the words in bold italics marked by reference figures in the Key Terms and Common Collocations section. Study their meanings and the word collocations they form.

Ex. 11. Find in the text English equivalents to the following words and phrases.

1) преобладать, господствовать;

2) бросать прямой вызов чему-л.;

3) строгое соблюдение принципов;

4) управление, основанное на результатах деятельности;

5) предоставлять общественные блага;

6) установленный порядок действий.

Ex. 12. Paraphrase the expressions from the text and translate them into Russian.

1) a flexible, market-based form of public management;

2) politics/administration dichotomy.

Ex. 13. Summarize the text. Follow the guidelines in Appendix 3.

Ex. 14. Skim the text below to find out:

• what has been challenged in Public administration;

• what kind of change is taking place.

Demand for Changes

These seven seeming verities in Public administration have been challenged.

• First, bureaucracy is indeed powerful but does not work well in all circumstances and has some negative consequences.

• Secondly, trying to find the one-best-way is elusive and can lead to rigidity in operation. Flexible management systems pioneered by the private sector are being adopted by governments.

• Thirdly, delivery by bureaucracy is not the only way to provide public goods and services (1); governments can operate indirectly through subsidies (2), regulation (3) or contracts, instead of always being the direct provider.

• Fourthly, political and administrative matters have in reality been intertwined for a long time, but the implications of this for management structures are only now being worked through. The public demands better mechanisms of accountability (4) where once the bureaucracy operated separately from the society.

• Fifthly, while there may be public servants motivated by the public interest, it now seems incontrovertible that they are political players in their own right. They may also be assumed to work for their own advancement and that of their agency (5), instead of being pure and selfless.

• Sixthly, the case for unusual employment conditions in the public services (6) is now much weaker, especially given the changes that have taken place in the private sector where jobs for life are rare.

• Finally, the tasks involved in the public sector are now considered more managerial, that is, requiring someone to take responsibility for the achievement of results, instead of being regarded as administrative and with public servants merely following instructions.

Economic problems in the 1980s meant governments reassessed their bureaucracies and demanded changes. As Caiden[4] argued, ‘All blamed the dead hand of bureaucracy, especially the poor performance of public bureaucracies and the daily annoyances of irksome restrictions, cumbrous red-tape, unpleasant officials, poor service and corrupt practices’ (7) (1991). A radical change in organizational culture is occurring, but not without cost. The new approach has problems, not the least of them the disruption to standard operating procedures and poor morale. There seemed to be a long way to go before a new results-based management could emerge, although there was no going back to the traditional model of public administration.

Source: condensed from http://do.gendocs.ru/docs/index-206555.html

Key terms and common collocations

1. public goods and services — общественные блага (блага, обладающие свойствами неконкурентности [т. е. потребление такого блага одним человеком не сокращает количество блага, доступное другим] и неисключительности в потреблении [т. е. нельзя исключить кого-л. из пользования этими благами без исключения всех остальных]; эти характеристики не позволяют назначать плату за общественные блага, и частный сектор оказывается незаинтересованным в их производстве; общественные блага предоставляются государством для всего или большинства населения страны [напр., оборона, чистые улицы и т. д.], на обеспечение общественных благ государство использует бюджетные фонды, сформированные из налогов)

2. subsidy [sʌbsɪdɪ] — субсидия, денежное ассигнование, дотация

government subsidy — государственная дотация, государственное ассигнование; государственная субсидия

grant a subsidy to — предоставить субсидию, субсидировать кого-л.

provide a subsidy for — обеспечивать субсидирование

subsidize [sʌbsɪdaɪz] — субсидировать, финансировать, дотировать, ассигновать

3. regulate [regjʊleɪt] (Syn: control, govern, direct) — регулировать, управлять; регламентировать; упорядочивать, приводить в порядок

to regulate the industries — стабилизировать работу промышленности

regulation [regjʊ´leɪʃn] — 1) регулирование; упорядочение; 2) правило, регламент, предписание, постановление, распоряжение, директива

to adopt / enact a regulation — принять предписание

to apply / enforce a regulation — исполнять, выполнять предписание

to ignore a regulation — игнорировать предписание

to obey / observe a regulation — следовать предписанию

to violate/break a regulation — нарушать предписание, приказ

duty regulation — должностная инструкция

regulations — правила; нормы; инструкция; положения; нормативные документы (документация, описывающая конкретные действия в данных типовых условиях и ситуациях)

in accordance with regulations — согласно правилам

rules and regulations — правила и предписания, правила внутреннего распорядка

safety regulations — правила безопасности, правила техники безопасности

government regulations — правительственные постановления

traffic regulations — правила дорожного движения

regulatory [rɛɡjələtri] — 1) властный, управляющий; 2) регулирующий; регулятивный; распорядительный; инструктивный

regulatory body/authority — регулятивный орган

regulatory control — регулирующее воздействие

4. accountability — 1) подотчетность (касается государственных служащих; считается, что выборные должностные лица обязаны нести бо́льшую ответственность за свои действия, чем назначенные); 2) возможность учета; учет; отчетность; 3) ответственность

5. agency — 1) орган, учреждение, организация, ведомство; 2) агентство (новостей); 3) действие, деятельность; поддержка, помощь, посредничество, содействие

auxiliary agency — вспомогательное ведомство (правительственное ведомство, обслуживающее другие правительственные ведомства)

non-government agency — неправительственная организация

watchdog agency — наблюдательный орган

healthcare agency — учреждение здравоохранения

law-enforcement agency — правоохранительные органы

independent agencies — ведомства в составе правительства США, независимые агентства

regulatory agencies — органы государственного регулирования

government departments and agencies — правительственные ведомства и учреждения

6. public services (Syn: supply services; public utility services) — 1) коммунальные услуги (оказываемые государственными учреждениями и предприятиями общественного пользования); 2) службы связи общего пользования; услуги связи, предоставляемые по установленным тарифам

public utilities (Syn: municipal utilities) — коммунальные службы, предприятия общественного пользования; коммунальное обслуживание (предприятия государственного или частного сектора, обеспечивающие, напр., энерго- и водоснабжение, газ, телекоммуникации, почту, транспорт)

7. corruption — 1) коррупция; 2) продажность; 3) развращенность, разложение (моральное)

corrupt practices — коррупция, приемы коррупции, злоупотребления

corruptible — коррумпированный, подкупный

Ex. 15. Find the words in bold italics marked by reference figures in the Key Terms and Common Collocations section. Study their meanings and the word collocations they form.

Ex. 16. Find in the text equivalents to the following words and phrases.

1) предоставлять общественные блага;

2) установленный порядок действий;

3) управление, основанное на результатах деятельности.

Ex. 17. Paraphrase the expressions from the text and translate them into Russian.

1) poor performance of public bureaucracies;

2) daily annoyances of irksome restrictions;

3) cumbrous red tape;

4) disruption to standard operating procedures.

Ex. 18. Summarize the text. Follow the guidelines in Appendix 3.

Developing professional language and translating competencies

Ex. 19. Complete the sentences with the correct English terms from the box below. Translate the sentences into Russian.

policy • policies • deliver • delivery • administration • administer • regulation • regulate

1. The government must evolve new _______________ to reduce unemployment.

2. The college loses a lot of money through poor ________________.

3. There have been complaints about a lack of direction in domestic _______________.

4. The Navajo _______________ their own territory within the United States.

5. Good government can _______________a high level of services while maintaining a fiscal discipline.

6. The proposal seeks to change the way the airline industry is _______________.

7. The government followed a _______________ of restraint in public spending.

8. They made all kinds of promises before the election, but have since failed to _______________ the goods.

9. Some argue that government control of the economy must include an effective income _______________.

10. The government has promised stricter _______________ of the stock market.

11. The cuts will inevitably impact on service _______________.

12. On September 27 a new coalition _______________was formed.

13. The government may find itself unable to _______________ on tax cuts.

14. The legislation was to be centrally _______________by the Board of Education.

15. There are too many rules and _______________ governing small businesses.

Ex. 20. Complete the sentences with the appropriate English terms and word collocations.

1. (Государственные служащие) _______________ also have an important managerial role, something more important than merely (ведение дел) _______________or following instructions.

2. The separation between (политика и управление государством) _______________ was designed to counter the spoils system, then still (процветающий) _______________ in the United States.

3. Weber regarded (бюрократия) _______________ as the highest form of organization, but it is also criticized for producing inertia, lack of enterprise, (волокита/канцелярщина) _______________, mediocrity and (неэффективность) _______________, all diseases thought to be endemic in (государственный сектор) _______________ bodies.

4. Ostrom advocates following the theory of (общественные блага) _______________, which leads to a much reduced role for the (государственный сектор) _______________.

5. The argument that individual (чиновники) _______________work for themselves, instead of the (интересы государства) _______________, cannot be totally discounted.

Ex. 21. Translate the following sentences into Russian. Pay attention to the words in italics.

1. Some educational and administrative facilities are located off campus for practical and operational reasons.

2. It offers a powerful tool for lobbying policy makers.

3. Whilst Russia, Austria, Prussia and France were becoming powerful monarchies with centralized administration, Poland had remained a weak feudal republic with an elected king chosen under foreign influence.

4. Government officials who are deputed to watch the interests of the ministerial departments to which they belong have a merely consultative position.

5. The policy adopted after 1890 of incorporating in the ordinary budget the expenditure on war and public works, each under its own head, rendered the extraordinary budget obsolete.

6. Amidst this sea of financial troubles the government drifted helplessly on, without showing any inclination or capacity to initiate a strong policy of reform in the methods of administration which had done so much to ruin the country.

7. The British government, which awarded a large annual subsidy to the king and queen at Palermo, claimed to have some control over the administration.

8. Further, as the country became more consolidated and the central government extended its authority over economic affairs, new regulations came into force, new organs of government appeared, which were sometimes in conflict, sometimes in harmony, with the existing system.

9. The Agreement provides for establishment of an Administrative Arrangement to implement the provisions of the Agreement.

10. The Administrative Arrangement was signed at the African Union Summit in Addis Ababa.

11. The aforesaid co-operation between the two Parties is planned to last for 30 months from the date of signing this Administrative Arrangement by both the parties...

12. All employees are expected to adhere to these standards, rules and regulations. And management is responsible for ensuring compliance.

13. The Office provides the required consultations to guarantee your legal rights and interests throughout the administrative procedure — we shall draft the required documents and represent your interests in the respective governmental and local government institutions or in court, if required.

14. Many government money laundering schemes are technically legal, since the laws concerning these corrupt practices are written and enforced by the perpetrators.

15. One administrative authority with jurisdiction for investigating alleged infringements of human rights is the Ombudsman.

16. Lithuania detains high-ranking law-enforcement official from Belarus.

17. Compliance with the Foreign Corrupt Practices Act (FCPA) is a critical business issue for international companies with operations in the United States.

18. They believe that without a totally planned economy the incomes policy can never work, the excess money in the economy greatly distorting other areas.

19. We therefore urge the European Parliament, the Council and the Commission to enact a regulation that is line with the objective of the Nagoya Protocol.

20. A bureaucrat is a member of a bureaucracy and can compose the administration of any organization of any size, although the term usually connotes someone within an institution of government.

Ex. 22. Translate the following sentences into English.

1. Увеличение налогов не может оставаться единственным инструментом фискальной политики.

2. Эти реформы позволят нам более эффективно предоставлять услуги в области здравоохранения.

3. Для соблюдения правил пожарной безопасности должны быть установлены детекторы дыма.

4. Приходившие на смену прежним правительства игнорировали эту проблему.

5. Существуют строгие правила, регулирующие использование химических веществ в продуктах питания.

6. Муниципальные советы (local councils) несут ответственность за предоставление большинства основных услуг.

7. Доложите об инциденте местному правительственному чиновнику.

8. С помощью бюрократической системы правительство стало прямым поставщиком общественных благ.

9. Общественность требует улучшения механизмов отчетности правительства.

10. Считалось, что мотивацией государственных служащих должен быть именно общественный интерес.

Talk and discussion

Ex. 23. Study the guidelines.

Guidelines

• To be a good debater, try to act confident, even if you’re not, by making eye contact with your opponent and standing up straight, which can make your argument appear more believable. Also, remain calm at all times, and never shout or get angry since it will only make your argument seem weak. You should also make sure you’re speaking clearly and loudly enough so your opponent and anyone else listening can understand what you’re saying.

• Usually there is a statement and two or more teams or single debaters will be assigned to either agree or disagree with the idea. You’ll then take turns making your points according to a set period of time.

• There are two essential things that make the discussions: special language discussion techniques and the manner of behaviour. During the discussion it is advisable that you should:

Learn and use speech patterns of discussion techniques which will help you:

a) to introduce your opinion and express your attitude to the problem,

b) to agree or disagree with the speaker,

c) to put forward defending arguments,

d) to break into the discussion,

e) to bring the discussion back to the point,

f) to express doubt and hesitation when you are in two minds,

g) to ask for explanation and clarification,

h) to come to conclusions.

• Mind your manner of speaking and behavior during the discussion:

Remember that you are discussing a problem and your attitude to it with your friends who are the participants of the discussion and not with the teacher who is only to prompt you with a word, to help the group when the discussion comes to a deadlock.

Address your friends properly when you share views with the group.

In order to break into the discussion when somebody is talking wait patiently for the person to finish. If the person is speaking too long, interrupt him politely when his idea is clear to you and when he finishes a sentence but not in the middle of it.

Formulate your ideas in a clear way.

React properly during the discussion.

Be persistent in defending your point of view but don’t be afraid to change your mind, if necessary, during the discussion if your friends’ arguments were very convincing.

Discussion Strategies

A. To take part in the discussion:

I’d like to raise the question of… / May I make a point about… / I think it is important to raise / to consider the question of…

B. To introduce / state opinions:

I’m convinced / sure / absolutely certain that… / It seems to me evident / obvious that… / Well, I’d like to say that… / My idea is… / As far as I know / remember … / I’m going to concentrate on the main points.

C. To break into a discussion:

If I could get a word edgeways … / If you’d let me get a word in / If you’d only listen to me … / Sorry to interrupt, but… / If I could have your attention for a moment … / (after being interrupted) You didn’t let me finish.

D. To raise objections against arguments:

There’s nothing that can persuade me that … / You haven’t convinced me that… / I’m afraid I can’t accept that… / I disagree / I’m not sure that’s true/correct/right. / I take / see your point, but… / There’s no evidence / no proof that …

Source: https://www.wikihow.com/Be-a-Good-Debater

Ex. 24. Discuss the following questions.

1. What was the beginning of public administration like?

2. Why is the traditional model of public administration being replaced now?

3. What are the seven fundamental principles of traditional public administration?

4. How and why have these principles been challenged?

5. What changes in organizational culture were brought about by the economic problems of the 1980s?

Ex. 25. Prepare Power Point Presentations on the following topics. Follow the guidelines in Appendix 1.

1. Theoretical foundations of Woodrow Wilson and Frederic Taylor.

2. Theoretical foundations of Max Weber in Germany.

3. Theoretical foundations of the Northcote-Trevelyan Report of 1854 in the United Kingdom.

Ex. 26. Topics for Impromptu talks practice. Comment on these ideas. Follow the guidelines in Appendix 2.

1. The essential difference between Administration and Management.

2. Attempts to find the one-best-way in Public administration is elusive and can lead to rigidity in operation.

3. Delivery by bureaucracy is not the only way to provide public goods and services.

4. The public demands better mechanisms of accountability where once the bureaucracy operated separately from the society.

Part 2. MANAGEMENT: WHERE FROM AND WHERE TO NOW

Ex. 1. Skim the text below to find out:

• what features of management become especially important in a competitive economy;

• what ‘Theory Y’ is, what the purpose of advancing it was.

Comment on the fragments in italics. Translate them into Russian.

50 Years of Management: Where from and Where to Now?

Managers, over the course of the 20th century, transformed the world in which we live and work.

Like every other sub-species, managers evolved — a product of an environment they themselves constantly shape, mould and recreate at the behest of owners and the dictates of the marketplace. Their ancestry dates back several thousand years, but ‘modern managers’ really only emerged from the grime of the Industrial Revolution in the 20th century.

Despite this fast-tracked evolution, some experts believe management’s organizational habitat is changing so rapidly that managers will not adapt in time to survive. When Kenneth Cloke and Joan Goldsmith, authors of the book The End of Management, told one of managements founding theorists Peter Drucker of their plans to write the book, he simply responded: ‘It’s about time’.

But is it really likely that managers have had their day? Doubtful, although there is a pronounced global swing toward greatly modified behaviour. Managers at the top end of the corporate feeding chain all too frequently show signs of excessive behaviour and abuse of their environment. Over-grazing can lead to extinction.

For their first 50 or so years, modern managers were masters and commanders — not much removed from their feudal ancestors. Command-and-control management survives to this day. It consists of a set of policies and procedures designed to provide managers with the tools to demand employee compliance, a form of minimalist individuality.

The first half of the 20th century was the scientific management age. Working life and enterprise was dominated by the assembly line and systematisers like Frederick Taylor, who introduced discipline and task analysis to ‘previously ad-hoe’ operations. Schools of business, like Harvard, appeared and in 1922 Harvard began publishing the Harvard Business Review, a magazine committed to publishing the new genre of academic management literature. The first comprehensive account of executive management was written in 1916 by a Frenchman, Henri Fayol. But, according to HBR, ‘Taylor’s influence was so great’ that it took several decades before the Frenchman’s ideas on formal management responsibilities became widely known.

The 1930s’ depression and its ultimate solution, increased government regulation, changed the marketplace and, before long, the managers’ world. America’s New Deal[[5]] and Europe’s Welfare State[[6]] emerged. Unions challenged management control while some American business writers argued that stockholders had lost influence over their managers. By war’s end the first age of managers was over, though a good many old practices remain.

After 1945 marketing and diversification took hold. A decade later, Drucker wrote his Practice of Management — a comprehensive guide that emphasised management objectives rather than social relations. America’s W. Edwards Deming, a neglected prophet in his homeland, began converting war-spawned Japanese industries to his teachings on ‘quality management’. And the surge in corporate growth and confidence — particularly in America — took off and continued unabated for the rest of the century, increasingly assisted by at first a fledgling, then a soaring information technology industry.

Drucker called managers ‘... the dynamic, life-giving element of every business’. Without a manager’s leadership the resources of production remain just that — resources that ‘never become production’. Managers determine the success and the survival of a business. ‘The quality and performance of its managers is the only effective advantage an enterprise in a competitive economy can have’, Drucker wrote in the introduction to his Practice of Management.

In the early 1960s, Douglas McGregor advanced his ‘Theory Y’[[7]] to challenge command-and-control orthodoxies, advocating a ‘softer style’ of management. The fact that people respond better to motivation and inspiration was, it seems, lost sight of during and well after the Industrial Revolution.

The ‘60s witnessed the up-welling of what became an unrelenting stream of management literature. Super managers like General Motors’ Alfred P. Sloan, credited with U-turning the moribund motor company in just three years, recounted their exploits in books like My Years with General Motors, a classic on how to apply the principles of total marketing and decentralization.

According to Harvard Business Review, strategy and social change dominated US management thinking through the ‘60s and into the early ‘70s. Strategists like Alfred Chandler and Kenneth Andrews identified strategy as the ‘primary work of executives’. And after McGregor explained Theory Y, Frederick Herzberg, an American clinical psychologist, discovered ‘job enrichment’ and told companies to boost job satisfaction by making full use of their employees, rather than depend on sensitivity training. Henry Mintzberg argued that effective managers rely heavily on intuition and personal contact. And Rosabeth Moss Kanter explored the ways in which hierarchies impeded women’s advance through management ranks.

Competitive challenge and restructuring prevailed through the second half of the ‘70s and well into the ‘80s. Meanwhile technology hit its straps and on its back rode the millennia’s closing decade, and with it the environment-changing forces of globalization and knowledge. Technology with its enhanced communications capabilities and knowledge management potential has, and will continue to greatly impact our management environment. But the consensus is simply that people will be more important in a technology-dominated world.

Abridged from: 50 Years of Management: Where from and Where to Now? New Zealand Management, Feb 2004

Ex. 2. Read the article in detail and answer the questions.

1. Who introduced discipline and task analysis?

2. Who wrote the comprehensive book on executive management?

3. What events characterize the year 1913?

4. What processes in management followed the post-war time?

5. What features of management become especially important in a competitive economy?

Developing and practicing skills

Ex. 3. Give the meaning of the following word combinations from the text in English (look up their definitions in an English-English dictionary) and suggest their Russian equivalents.

1) organizational habitat

2) employee compliance

3) assembly line

4) discipline and task analysis

5) ‘ad-hoc’ operations

6) diversification

7) total marketing and decentralization

8) job enrichment

9) job satisfaction

10) sensitivity training

11) management ranks

12) competitive challenge

13) restructuring

Source: condensed from https://www.yumpu.com/en/document/view/2380524/public-management-and-administration-owen-ehughes/28

Ex. 4. Use the words in the box to fill in the gaps.

organizational habitat • employee compliance • assembly line • discipline and task analysis • ‘ad-hoc’ operations • diversification • total marketing and decentralization • job enrichment • job satisfaction • sensitivity training • management ranks • competitive challenge • restructuring

1. The survey showed that many workers want a higher level of ______________ ______________ .

2. Organizations have been experimenting with ways to increase ______________ ______________ .

3. An engine rolls off the assembly line every 72 seconds. ______________ ______________ automation has reduced error rates in manufacturing.

4. ______________ and ______________ ______________ is pivotal in every segment of management.

5. Toyota’s ______________ into housing and telecommunications has proved its effectiveness.

6. We have abandoned our ______________ strategy to focus on core activities.

7. Our company has experienced a ______________ of authority.

8. ______________ ______________ a way of increasing the variety of tasks of an employee.

9. When employees take full responsibility for their work, this can lead to higher ______________ ______________ .

10. ‘______________ ______________’ is a form of training that claims to make people more aware of their own prejudices.

11. Promotion will mean that I am immediately above him in ______________ ______________ .

12. The group said it was about to embark on a major ______________ .

Source: condensed from https://www.yumpu.com/en/document/view/2380524/public-management-and-administration-owen-ehughes/28

Ex. 5. Look for contextual synonyms to these words in the text and reproduce the context they are used in.

1) at the direction

2) prescribe (v)

3) conformity (n)

4) production line

5) enhancement (n)

6) position (n)

7) reorganization (n)

8) mould (v)

9) fast-traced (adj)

10) dedicated to (adj)

11) seize (v)

12) unmitigated (adj)

13) fresher (n)

14) speak in support of (v)

15) adapt (v)

Source: condensed from https://www.yumpu.com/en/document/view/2380524/public-management-and-administration-owen-ehughes/28

Ex. 6. Translate the sentences in bold type into Russian.

Ex. 7. Complete the following sentences using your own words.

1. It would be mistaken to argue that actual nowadays management dates back thousands of years because ______________ .

2. Management’s organizational habitat determines ______________ .

3. The statement that ‘managers have had their day’ is ______________ .

4. Modern managers still had the features of their feudal ancestors when ______________ .

5. The first age of managers starts with … and is over when ______________ .

6. Through the ‘60s and into the early ‘70s the management thinking was dominated by ______________ .

7. Through the ‘70s and into the early ‘80s technology ______________ .

Source: condensed from https://www.yumpu.com/en/document/view/2380524/public-management-and-administration-owen-ehughes/28

Ex. 8. Prepare a summary of the article in English. Follow the guidelines in Appendix 3.

UNIT 2

Lead-in

Comment on the quotations of influential business figures and authors around the world.

• “Bad administration, to be sure, can destroy good policy; but good administration can never save bad policy.”

Adlai E. Stevenson (1900—1965), US statesman and author

• “The administration (of a nation) must be entrusted to experts. We must not look upon these experts as grand presidents and ministers, but simply as our chauffeurs, as guards at the gate, as cooks, physicians, carpenters, or tailors.”

Sun Yat-Sen (1866—1925), Chinese revolutionary leader

• “The problem of our age is the administration of wealth, so that the ties of brotherhood may still bind together the rich and poor in harmonious relationship.”

Andrew Carnegie (1835—1919), US industrialist and philanthropist

Source: Wikipedia, the free encyclopedia

Part 1. THE HISTORY OF PUBLIC ADMINISTRATION

Ex. 1. Skim the text on the history of public administration to find out:

• what the main characteristics of the early administrative systems are;

• what the inherent problems of the earlier forms of administration are.

Make sure you know the meaning of the underlined words and phrases. Explain or paraphrase them.

Summarize the text.

Early Administration

Public administration has a long history, one paralleling the very notion of government. Administrative systems existed in ancient Egypt to administer irrigation from the annual flood of the Nile and to build the pyramids. China in the Han dynasty (206 BC to AD 220) adopted the Confucian precept that government should be handled by men chosen, not by birth, but by virtue and ability, and that its main aim was the happiness of the people.

In Europe the various Empires — Greek, Roman, Holy Roman, Spanish, and so on — were, above all, administrative empires, controlled from the centre by rules and procedures. The development of ‘modern’ states in the Middle Ages is argued by Weber to have ‘developed concomitantly with bureaucratic structures’. Although some kind of administration existed earlier, however, the traditional model of public administration really dates from as late as the mid-nineteenth century.

Earlier systems of administration shared one important characteristic. They were ‘personal’, that is, based on loyalty to a particular individual such as a king or a minister, instead of being ‘impersonal’, based on legality and loyalty to the organization and the state. Their practices often resulted in corruption or misuse of office for personal gain, although the very idea that these are undesirable features of administration itself only derives from the traditional model. Practices that now seem alien were commonplace ways of carrying out government functions under earlier administrative arrangements. It was once common for those aspiring to employment by the state to resort to patronage [8] or nepotism[9], relying on friends or relatives for employment, or by purchasing offices; that is, to pay for the right to be a customs or tax collector, and then to charge fees to clients, both to repay the initial sum invested and to make a profit. In early colonial Sydney, the customs officer personally received five per cent of all duties collected and the police were paid a shilling for ‘apprehending and lodging in gaol any sailor who may be found riotous and disorderly’. Key administrative positions were usually not full-time but were only one of the activities of someone in business. The normal way for a young man to gain government employment (only men were employed) was to apply to some relative or family friend in a position to help. There was no guarantee that people employed by the system would be competent in any way.

In the United States for most of the nineteenth century, there existed what was termed the spoils system of administration, derived from the saying ‘to the victor belong the spoils’. After an election in which a new party was elected — and this applied to elections from the local level to the Presidency — every administrative job from the top to the bottom could be filled by an appointee from the winning party. This system reached its nadir in the 1830s during the presidency of Andrew Jackson, who believed that there was no specific expertise involved in public administration, nor was there any reason that the administration of government should persist when its political complexion changes. The benefits of public office — patronage, direct financial benefits — rightly belong to the successful party in an election.

Jackson thought there were advantages in making the administration more egalitarian[10] and democratic: ‘I cannot but believe that more is lost by continuance of men in office than is generally gained by their experience.’ Presumably, by changing officeholders whose loyalties were clearly to the party, much could be gained, perhaps even reduced corruption. It could even be argued that political accountability was enhanced in ‘reaction to a sense that government had not been sufficiently responsive to changes in the electoral will.’ This egalitarian philosophy fit well with the American distrust of government, but had major drawbacks such as the periodic chaos which attended changes of administration; the popular association of public administration with politics and incompetence; the growing conflicts over appointments, etc. Such a system was neither efficient nor effective. Citizens did not know where they stood when government administration was, in effect, a private business in which government decisions, money and votes were negotiable commodities.

Eventually, the inherent problems of earlier forms of administration led to changes in the latter part of the nineteenth century and to the reforms associated with the traditional model of administration. Pre-modern bureaucracies were ‘personal, traditional, diffuse, ascriptive and particularistic’ where modern bureaucracies, exemplified by Weber, were to become ‘impersonal, rational, specific, achievement-oriented and universalistic.’ Earlier practices now seem strange because of the very success of the traditional model of administration. Professional, non-partisan administration is so familiar to us that it is hard to imagine that any other system could exist.

Сondensed from: Owen E. Hughes. Public Management and Administration. https://link.springer.com/content/pdf/10.1007/978-1-349-26896-2_2.pdf

Ex. 2. Skim the text to find out the significance of the 19th century public service reforms in the UK and the United States.

Make sure you know the meaning of the underlined words and phrases, can explain or paraphrase them.

Summarize the text.

Nineteenth Century Reforms

The beginning of the traditional model is best seen in mid-nineteenth century Britain. In 1854, the Northcote-Trevelyan Report recommended that ‘the public service should be carried out by the admission into its lower ranks of a carefully selected body of young men’ through ‘the establishment of a proper system of examination before appointment’. It recommended: the abolition of patronage and the substitution of recruitment by open competitive examinations under the supervision of a central examining board; reorganization of office staffs of central departments in broad classes to deal with intellectual and mechanical work respectively; and filling higher posts by promotion from inside based on merit. Northcote-Trevelyan signals the start of merit-based appointments to the public service and the gradual decline of patronage. The Report emphasizes personnel matters and its recommendations were implemented slowly, but it does represent a beginning to the traditional model of public administration. From Northcote and Trevelyan derive appointment by merit through examinations, and non-partisan, neutral administration.

The United Kingdom reforms of the mid-nineteenth century influenced opinion in the United States. The evils of the spoils system were all too evident in the corruption endemic in government, particularly in the cities. In1881, President Garfield was assassinated by a disappointed spoils seeker — someone who thought he had been promised a civil service position — and this event gave further impetus to the movement for reform that was already in existence. As a result, in 1883, the Civil Service Act (the Pendleton Act) was passed which established a bipartisan Civil Service Commission and contained four key points: (I) the holding of competitive examinations for all applicants to the classified service; (II) the making of appointments to classified service from those graded highest in the examinations; (III) the interposition of an effective probationary period before absolute appointment; (IV) the apportionment of appointments at Washington according to the population of the several states and other major areas. The Pendleton Act was certainly inspired by the British civil service reforms, although the United States did not adopt the rigid four-class system or the requirement that entrance only be at the base grade.

The model was greatly influenced by Woodrow Wilson in the United States, one of the key activists in the United States reform movement, and Max Weber in Europe. Weber formulated the theory of bureaucracy, the idea of a distinct, professional public service, recruited and appointed by merit, politically neutral, which would remain in office throughout changes in government. Wilson put forth the view that politicians should be responsible for making policy, while the administration would be responsible for carrying it out. From both is derived the notion that administration could be instrumental and technical, removed from the political sphere. Still later, the principles of scientific management, from Frederick Taylor, were adopted for the public sector.

Wilson, Taylor and Weber, who were contemporaries, are the main influences on the traditional model of public administration.

Condensed from: Owen E. Hughes. Public Management and Administration. https://link.springer.com/content/pdf/10.1007/978-1-349-26896-2_2.pdf

Ex. 3. Skim the text to find out:

• why Weber’s theory of bureaucracy is the most important theoretical principle of the traditional model of administration;

• how Weber specified the position of the individual official.

Make sure you know the meaning of the underlined words and phrases. Explain or paraphrase them.

Summarize the text.

Weber’s Principles of Bureaucracy

The most important theoretical principle of the traditional model of administration is Weber’s theory of bureaucracy. Throughout its long history, the traditional model followed Weber’s theory virtually to the letter, either implicitly, or explicitly, although it is important to note that bureaucracy existed as a practice prior to Weber setting it out as a theory.

In setting out a basis for his theory, Weber argued that there were three types of authority: the charismatic — the appeal of an extraordinary leader; the traditional — such as the authority of a tribal chief; and rational/legal authority. The latter was both rational and legal, naturally, as opposed to the other forms of authority, and formed the basis of his theory of bureaucracy.

Weber set out six principles for modern systems of bureaucracy.

The principle of fixed and official jurisdictional areas, which are generally ordered by rules, that is by laws or administrative regulations.

The principles of office hierarchy and of levels of graded authority mean a firmly ordered system of super- and sub-ordination in which there is a supervision of the lower offices by the higher ones.

The management of the modern office is based upon written documents (‘the files’) which are preserved. The body of officials actively engaged in ‘public’ office, along with the respective apparatus of material implements and the files, make up a bureau … In general, bureaucracy segregates official activity as something distinct from the sphere of private life … Public monies and equipment are divorced from the private property of the official.

Office management, at least all specialized office management — and management is distinctly modern — usually presupposes thorough and expert training.

When the office is fully developed, official activity demands the full working capacity of the official … Formerly, in all cases, the normal state of affairs was reversed: official business was discharged as a secondary activity.

The management of the office follows general rules, which are more or less stable, more or less exhaustive, and which can be learned. Knowledge of these rules represents a special technical learning which the officials possess. It involves jurisprudence, or administrative or business management.

The principles of bureaucracy have become so ingrained in society that these points seem obvious, but they did present a substantial advance on early administration. The main differences and advances of the Weberian system are best understood by comparison with earlier models of administration. The key contrast, the most important difference between Weber and previous models, is the replacement of personal administration with an impersonal system based on rules. An organization and its rules are more important than any individual within it. This is a very important point. Earlier administration was based on personal relationships — loyalty to a relative, patron, leader or party — and not to the system itself. At times the earlier model may have been more responsive politically, in that the administration was more clearly an arm of the politicians or the dominant classes favoured by appointments. But it was also often arbitrary, and arbitrary administration can be unjust. An impersonal system based on Weber’s principles removes arbitrariness completely — at least it does in the ideal case. The existence of the files, the belief in precedent and the basis in law mean that the same decision is always made in the same circumstances. Not only is this more efficient, but citizens, and those in the bureaucratic hierarchy, know where they stand.

The individual official occupies a key place in Weber’s theory. Office holding is considered a vocation, following examinations and a rigorous course of training. According to Weber, ‘entrance into an office is considered an acceptance of specific obligation of faithful management in return for a secure existence.’ He specified the position of the official in the following way:

The modern official always strives for and usually enjoys a distinct social esteem as compared with the governed.

The pure type of bureaucratic official is appointed by a superior authority. An official elected by the governed is not a purely bureaucratic figure.

Normally, the position of the official is held for life, at least in public bureaucracies.

Where legal guarantees against arbitrary dismissal or transfer are developed, they merely serve to guarantee a strictly objective discharge of specific office duties free from all personal considerations.

The official receives the regular pecuniary[11] compensation of a normally fixed salary and the old age security provided by a pension. The salary is not measured like a wage in terms of work done, but according to ‘status’, that is, according to the function (the ‘rank’) and, in addition, possibly, according to the length of service.

The official is set for a ‘career’ within the hierarchical order of the public service. He moves from the lower, less important, and lower paid to the higher positions.

These points follow logically from the six principles of bureaucracy. The official is to be part of an elite with status higher than that of ordinary citizens. Along with Northcote-Trevelyan, Weber’s theory required recruitment by merit, not by election or by patronage, into a position normally held for life in exchange for impartial service. Part of the lifetime and full-time career of the public servant is the principle of fixed salary and the prospect of advancement through the hierarchical structure.

The two principles — the model of bureaucracy and position of the official — had specific purposes. A formal, impersonal system offers ‘the optimum possibility for carrying through the principle of specialising functions according to purely objective considerations’. Decisions would and should be made according to ‘calculable rules’ and ‘without regard for persons’. The general aims were certainty, impersonality and efficiency. The idea was to create a system that was at the highest possible level of technical efficiency.

Weber’s idea that bureaucracy was the most efficient form of organization applies to all large undertakings. The formal model of bureaucracy is applicable to both the private and public sector, but there is little doubt it was embraced more readily and for longer in public administration.

Condensed from: Owen E. Hughes. Public Management and Administration. https://link.springer.com/content/pdf/10.1007/978-1-349-26896-2_2.pdf

Ex. 4. Skim the text to find out:

• what the essence of the theory of dichotomy is;

• if politics and administration can be separated.

Make sure you know the meaning of the underlined words and phrases, can explain or paraphrase them.

Summarize the text.

Woodrow Wilson’s Dichotomy

In the traditional model of public administration, the rules linking the political leadership with the bureaucracy are clear, at least in theory. Woodrow Wilson — a Professor at Princeton for many years before becoming United States President — argued that there should be a strict separation of politics from the administration; of policy from the strictly administrative task of carrying it out. As he argued in 1886:

Administration lies outside the proper sphere of politics. Administrative questions are not political questions. …Public administration is detailed and systematic execution of public law. Every particular application of general law is an act of administration. The assessment and raising of taxes, for instance, the hanging of a criminal, the transportation and delivery of the mails, the equipment and recruiting of the army and navy, etc., are all obviously acts of administration, but the general laws which direct these things to be done are obviously outside of and above administration. The broad plans of governmental action are not administrative; the detailed execution of such plans is administrative.

Wilson believed that the evils of the spoils system resulted from the linking of administrative questions with political ones. If administrators act in an overtly political manner, whether due to the process by which they were appointed, or their continuing role within the party organization, corruption is likely to result and arbitrary decisions almost certain. Separation of the political sphere, where policy derives, from the administrative sphere, where policies are administered, could address many evils of the spoils system.

Traditional public administration elevated the distinction between administrative and political matters to its guiding principle — that of politics/administration dichotomy. The dichotomy between politics and administration allowed room for a new criterion for public action, based on the insertion of professionalization, expertise, and values into the active direction of government affairs.

The traditional system of administration in parliamentary countries similarly aimed for a separation of policy from administration. There are three main facets to political control in the traditional model of administration, most notably in Westminster systems. First, there is a clear relationship between accountability and responsibility. A department or agency has two basic roles: to advise the political leadership on the development, review and implementation of policy, and to manage its own resources so that policy may be implemented. Each public servant is technically accountable, through the hierarchical structure of the department, to the Cabinet, and eventually to the people. Second, there should be a strict separation between matters of policy, which are formally the province of politicians, and matters of administration, which are left to the public service. Third, the administration is presumed to be anonymous and neutral, that is, not personally associated with any decisions or policies that are carried out only in the name of the minister; and non-partisan in the party-political sense and able to serve equally to any political leader. Westminster systems added the formal system of ministerial responsibility. If ministers accept personal responsibility for all the activities of their departments, public servants should remain anonymous and not publicly identified with the advice they give to ministers. In return for serving ministers from whatever party to the best of their ability, that is, for acting impersonally and objectively, public servants receive certain benefits in their conditions of service, such as security of employment, despite changes of government, and a decent pension.

In the traditional model of administration, the worlds of the politician and the public official were to be separate. Although the theory of separation — of dichotomy — between politics and administration was a major part of the traditional model of administration, it was, for many years, widely regarded as a myth, especially useful for the evasion of responsibility. In reality, the two are effectively ‘fused with politicians performing administrative duties and administrators assuming political responsibilities’. It was a fantasy to assume that politicians and administrators could be separate, but bureaucratic structures were constructed as though the myth was reality.

Condensed from: Owen E. Hughes. Public Management and Administration. https://link.springer.com/content/pdf/10.1007/978-1-349-26896-2_2.pdf

Ex. 5. Skim the text about Frederic Taylor’s principles of management to find out which way his theory influenced the traditional model of administration.

Make sure you know the meaning of the underlined words and phrases, can explain or paraphrase them.

Summarize the text.

Frederic Taylor’s Principles of Management

The traditional model of administration was fully formed by the 1920s and continued with remarkably little change for at least fifty years. The bureaucracy was supposed to be permanent and neutral; it was not engaged in policy or politics, but was an instrument of great power to be wielded by the politicians. Although the theoretical foundations of bureaucracy and political control were firmly established and essentially unchanged, there were public sector adaptations of management theory. All that was needed for a complete theory was a way of working, of organizing, to be added to the bureaucratic model of Weber, the political control of Wilson and the merit appointments and political neutrality of Northcote-Trevelyan. This was found in the scientific management principles put forward for the private sector by Frederic Winslow Taylor (1911). There were two main points to Tailor’s theory: standardizing work, which meant finding the ‘one best way of working’ and ‘controlling so extensively and intensively as to provide for the maintenance of all these standards’.

Scientific management became an evangelical force in the early years of the century. What Taylor sought was a fundamental change as efficiency and science replaced ad hoc decision-making, even a societal change as, through scientific management, the interests of employees and employers could be shown to be the same.

Scientific management fits very well with the theory of bureaucracy: the skills of the administrator, the compilation of manuals to cover every contingency, the advance of rationality, and impersonality are aspects of both. Standardization of tasks and fitting workers to them was perfect for the traditional model of administration. Even the measurement of performance by stop-watch was common in the organization and methods branch of large public bureaucracies.

Taylor remains important for public administration, as his theory of scientific management became a key influence on what followed in the management of public and private sectors. Although particular points could be disputed — the crude theory of personal motivation, time-and-motion studies — the idea that management could be systematic remained important in the public sector: ‘a strong, effective administrative system could flourish if politics was restricted to its proper sphere, if scientific methods were applied, and if economy and efficiency were societal goals’ (Stillman[12], 1991).

Condensed from: Owen E. Hughes. Public Management and Administration. https://link.springer.com/content/pdf/10.1007/978-1-349-26896-2_2.pdf

Ex. 6. Skim the text to find out:

• what impact the human relations school had on the management of the public sector;

• why the ‘POSDCORB’ set of functions was of dramatical significance for management in the public sector.

Make sure you know the meaning of the underlined words and phrases, can explain or paraphrase them.

Summarize the text.

Elton Mayo’s Human Relations Theory

Another theory, ‘human relations’, is often contrasted with scientific management. The focus of human relations is more on the social context at work rather than regarding the worker as an automaton responsive only to financial incentives. The human relations school had its roots in social psychology, and although quite different in some respects, became as much of a continuing tradition in public administration as did scientific management.

Although the human relations idea has many theorists, the real founder was Elton Mayo[13]. In a series of experiment s during the 1930s, Mayo found that the social context of the work group was the most important factor in management. Conflict was pathological and to be avoided, and there was no necessary antagonism between management and workers. In what became known as the ‘Hawthorne experiments’, referring to the Hawthorne plant of Western Electric, Mayo found that productivity increased most by taking an interest in the workers, and other factors, including financial incentives, were much less important.

Mayo and his followers had substantial impact on the management of the public sector, even if more recent work has cast doubt on the value of interpretations of the original data, showing most particularly that financial incentives were important after all. Consideration of the psychological context of the organization was responsible for a major school of thought in theories of organizational behavior. The idea that individuals responded to other than financial motives led to an improvement in working conditions.

Mayo influenced those who thought management should be kinder to their workers and provide some kind of social interaction, including in government. Public organizations had fewer competitive constraints than the private sector and, arguably, went further in introducing human relations, particularly in the 1960s and 1970s. One of the widely-held outside criticisms of the public bureaucracy has been that workers are treated too well and had to do so little compared to the private sector.

* * *

Early practitioners were confident, assured of their theories and, above all, believed that the improvement of government and its administration offered the promise of a better life for all. Public administration in its Golden Age, from around 1920 to the early 1970s, was a worthy enterprise, with government and public service offering the hope of improving society. Public administration was responsible for some major achievements in this time, ranging from administering the New Deal[14], to building dams and running the nascent welfare systems of developed countries as well as entire economies during World War II.

It seemed that all that was needed was to establish a set of nostrums, follow them exactly and the outcome would be all that could be desired. One variation was the ‘POSDCORB’ set of functions where this acronym stood for:

Planning: goal setting techniques/methods applied by executives as a means of preparing future courses of organizational action;

Organizing: arranging the organizational structure and processes in an appropriate manner essential to achieving these ends;

Staffing: recruiting and hiring personnel to carry out the essential agency work;

Directing: supervising the actual processes of doing the assignments;

Coordinating: integrating the various detailed elements of these tasks in cooperation with other units and people in government;

Reporting: tracking and communicating the progress of the work within the organization;

Budgeting: fiscal and financial activities necessary to economically support the completion of these programmes, services, or activities.

As early as the 1940s, POSDCORB was attacked as being counter to the human relations movement. POSDCORB and other classical approaches ‘were viewed as attempts to exploit, control, and manipulate workers.’

Condensed from: Owen E. Hughes. Public Management and Administration. https://link.springer.com/content/pdf/10.1007/978-1-349-26896-2_2.pdf

Developing professional language and translating competencies

Ex. 7. Translate the following sentences into Russian.

1. Public administration has a long history, one paralleling the very notion of government.

2. The Report emphasizes personnel matters and its recommendations were implemented slowly…

3. In 1881, President Garfield was assassinated by a disappointed spoils seeker — someone who thought he had been promised a civil service position…

4. An organization and its rules are more important than any individual within it. This is a very important point.

5. Not only is this more efficient, but citizens, and those in the bureaucratic hierarchy, know where they stand.

6. These points follow logically from the six principles of bureaucracy.

7. Weber’s idea that bureaucracy was the most efficient form of organization applies to all large undertakings.

8. Traditional public administration elevated the distinction between administrative and political matters to its guiding principle — that of politics/administration dichotomy.

9. The dichotomy between politics and administration allowed room for a new criterion for public action, based on the insertion of professionalization, expertise, and merit values into the active direction of government affairs.

10. There are three main facets to political control in the traditional model of administration…

11. …there should be a strict separation between matters of policy, which are formally the province of politicians, and matters of administration, which are left to the public service.

12. …the administration is presumed to be … non-partisan in the party-political sense and able to serve equally to any political leader.

13. In return for serving ministers from whatever party to the best of their ability … public servants receive certain benefits…

14. There were two main points to Tailor’s theory…

15. Although particular points could be disputed … the idea that management could be systematic remained important in the public sector…

Ex. 8. Read the excerpts and identify their topics and theses. Comment on the ideas of the article. Translate the following into Russian.

Classical Public Administration

Often considered the best way for organizing public sector work, it was used highly in the western world in the 19th and early 20th century. A differing proponent between America and Europe is the transferring of effective management methods between large private and public organizations. The first effective theory in America was Scientific Theory coined by Frederick W. Taylor in 1911. His work “Principles and Methods of Scientific Management” was used to implement ideas that would increase the efficiency of American government. Taylor’s ideas of standardizing work, systematic control, and a hierarchical organization were perfect fits for the public sector of the 1940s.

New Public Management

New Public Management was the prominent theory that inspired health care reforms for the United Kingdom. Its application to health care coincided with the growing expenditures that were being used due to the progress of technology and an aging population. The difference between private and public sectors in terms of budget process and ideology provided a clash of interest. 1990 saw the National Health Service create an internal market of separate care providers and hospitals. This creation of markets in turn stopped the State from being the funder and service provider simultaneously, to just primarily the funder. Although not privatized, these markets became competitive in nature. Assumption that the competition would lead to more empowerment, efficiency, and equity became rampant. Soon the publicly owned hospitals were granted a quasi-autonomous status from the District Health Authorities leading to the competition for patients and funds. Their status acquired led to little if any interference in the everyday operations.

Postmodern Public Administration

Postmodern Public Administration is linked to the capitalist model of the late 20th and 21st century. It relates to globalization, consumerism, and the fragmentation of authority and state. The concepts of science and reason are de-centered and viewed as the defining truths. It tends to negate any faith-based actions.

Condensed from: Owen E. Hughes. Public Management and Administration. https://link.springer.com/content/pdf/10.1007/978-1-349-26896-2_2.pdf

Ex. 9. Translate the text into English. Use relevant terms.

Государственное управление

Государственное управление — деятельность органов государственной власти и их должностных лиц по практическому воплощению выработанного на основе соответствующих процедур политического курса. Деятельность по государственному управлению традиционно противопоставляется, с одной стороны, политической деятельности, а с другой стороны — деятельности по формулированию политического курса.

В теории государственного управления существует три основных подхода к формулированию основных принципов государственного управления: правовой подход; политический подход; менеджеристский (управленческий) подход.

Согласно правовому подходу ключевыми ценностями государственного управления являются верховенство права, защита прав граждан. Государственный служащий подчинен не столько своему руководству, сколько требованиям правового государства и Конституции.

Согласно политическому подходу основной задачей государственного управления является максимально лучшее воплощение воли народа. Государственные служащие должны быть политически ответственны (подотчетны), восприимчивы к текущим интересам граждан. Для того чтобы воплотить это, иногда предлагается реализация концепции «представительной бюрократии», в рамках которой органы исполнительной власти должны быть социальной моделью общества в миниатюре. Предполагается, что в этой ситуации облегчится учет ведомствами существующих в обществе интересов, будут снижены возможности для дискриминации отдельных групп.

Согласно менеджеристскому подходу основными ценностями государственного управления должны быть эффективность, экономичность и результативность, формулируемые по возможности в квантифицируемой (измеримой) форме. Основная проблема, которая ставится в этом подходе, состоит в том, как обеспечить нужный результат с наименьшими затратами или, как вариант, как получить максимальный результат при заданных затратах. Характерным признаком данного подхода является использование понятия «государственный менеджмент» в качестве синонима понятию «государственное управление».

Общей для всех трех подходов является проблема соответствия действий государственных служащих сформулированным заранее принципам:

— следования принципу верховенства права (правовой подход);

— следования воле народа (политический подход);

— следования цели получения нужного социально-экономического результата (менеджеристский подход).

Оценка того, насколько эта проблема решается, называется качеством государственного управления. Каждый подход использует в качестве основных разные показатели качества государственного управления.

Source: Wikipedia, the free encyclopedia

Talk and discussion

Ex. 10. Discuss the following questions. Follow the guidelines for impromptu talks in Appendix 2.

I.

1. Which common characteristic did Earlier systems of administration share?

2. What is nepotism? Does it dramatically differ from patronage?

3. What are the distinctive features of the spoils system of administration?

4. What were the major drawbacks of egalitarian philosophy?

II.

1. What did the Northcote-Trevelyan Report recommend?

2. How could the system of recruitment by open competitive examinations be described?

3. What is merit-based appointment system and why was could bring about gradual decline of patronage?

4. What did the Pendleton Act establish? When was it passed?

III.

1. What principles for modern systems of bureaucracy did Weber set out?

2. Why is arbitrary administration considered to be unjust?

3. What kind of recruitment did Weber’s theory along with Northcote-Trevelyan require?

4. What does impartial service involve?

IV.

1. Why did the evils of the spoils system result from the linking of administrative questions with political ones according to Wilson?

2. What are the three main facets to political control in the traditional model of administration?

3. What does the principle of dichotomy in Public administration involve?

V.

1. What did two main points of Tailor’s theory include?

2. Why does Taylor’s his theory of scientific management remain important for public administration?

3. Why does Scientific management fit well with the theory of bureaucracy?

VI.

1. What idea is often contrasted with scientific management?

2. What did Elton Mayo find out in a series of experiments in 1930s?

3. Why did Mayo and his followers have substantial impact on the management of the public sector?

Ex. 11. Prepare Power Point Presentations on the following topics. Follow the guidelines from Appendix 1.

1. Current Events in Public Policy

2. The Northcote – Trevelyan Report

3. The Civil Service Act (the Pendleton Act)

4. Max Weber’s Principles of Bureaucracy

5. Woodrow Wilson’s Dichotomy

6. Frederic Winslow Taylor and his Principles of Management

7. Human relations school of management by Elton Mayo

8. Westminster Parliamentary System

9. Western European Parliamentary Model

10. Hybrid Parliamentary Model

11. “The New Deal”

Ex. 12. Topics for impromptu talks practice. Comment on these ideas. Follow the guidelines from Appendix 2.

1. Spoils system of administration might have had some advantages back then.

2. The system of making appointments to classified service from those graded highest in the examinations may have some drawbacks.

3. The interposition of an effective probationary period before absolute appointment and the apportionment of appointments are a pre-requisite for an egalitarian paradigm in Public administration.

4. One of the widely-held outside criticisms of the public bureaucracy has been that workers are treated too well and had to do so little compared to the private sector.

5. POSDCORB and other classical approaches can be somehow ‘viewed as attempts to exploit, control, and manipulate workers.’

Developing professional language and translating competencies

Translation Hints &Tips

The Absolute Participle Construction

The Absolute Participle Construction is a construction in which the participle has the “subject” of its own. This subject is not the subject of the sentence.

Though formally independent of the sentence, the absolute construction is a logical adverbial modifier of time, cause, condition and is rendered in Russian by means of an adverbial clause (так как, хотя, когда, после того как).

Prepositional Absolute Constructions

A Prepositional Absolute Participial Construction differs from a Non-prepositional Participial Construction in that it is introduced by the prepositions “with” and “without”. Its nominal part is usually a noun in the Common Case, or very rarely a personal pronoun in the Objective Case. It is not necessarily set off by a comma, e.g.: Andrew went into the house with his heart beating fast. She went on reading with her eyes fixed on the pages of the book. Without a word more spoken, they went away.

There are prepositional absolute constructions with participle I or II, with an infinitive, with an adjective, with a stative, with an adverb, or with a prepositional noun. All function mainly as adverbials of attendant circumstances, although sometimes they may be other adverbials. All of them can be transformed into clauses.

Examples:

With the USA and Great Britain spending large sums on education, health care and transport, it is hard to believe that there can be any serious decline in the demand for metals.

Так как США и Великобритания тратят большие суммы на перевооружение, трудно предположить, что может быть серьезное снижение спроса на металл.

With the prices going higher and higher and the wages frozen, it is becoming increasingly difficult for the British housewife to make both ends meet.

Так как цены продолжают расти, а зарплата заморожена, английским хозяйкам становится все труднее сводить концы с концами.

With unemployment now a crisis issue in many areas, the Labor movement is stepping up its ‘right to work’ campaign.

Теперь, когда вопрос о безработице стоит очень остро во многих районах страны, рабочие усиливают кампанию за «право на работу».

Ex. 13. Translate into Russian.

1. With its foreign policy based on the principles of peaceful coexistence, Russia is actively pursuing a policy of improving and developing relations with all the countries.

2. With only the railway men’s delegation voting against, the 27th annual youth conference of the Scottish T. U. C. condemned the wage freeze here today.

3. With the Government doing its utmost to keep wages down, and with price increases due to Market membership coming on top of price increases arising from Government policy, the standard of living in this country would be given an extremely serious setback.

4. With sterling staging its recovery on the foreign exchanges it has been easy for markets to lose sight of what is happening to the economy in the meantime.

5. However with an ever-widening band of economic and trade issues appearing in the spectrum of activities, Western meetings began to follow a pattern of economic rather than political alliances.

6. Public administration was considered a special kind of activity and, therefore, required a professional bureaucracy, neutral, anonymous, employed for life, with the ability to serve any political master equally.

7. The tasks involved in public service were indeed administrative in the dictionary sense, that is, following the instructions provided by others without personal responsibility for results.

8. The tasks involved in the public sector are now considered more managerial, that is, requiring someone to take responsibility for the achievement of results, instead of being regarded as administrative and with public servants merely following instructions.

9. The official is to be part of an elite with status higher than that of ordinary citizens.

10. Public administration in its Golden Age, from around 1920 to the early 1970s, was a worthy enterprise, with government and public service offering the hope of improving society.

11. With so many mothers choosing either to work or to follow an active schedule outside the home, the use of childcare facilities is becoming more and more widespread.

Source: https://studfile.net/preview/1197091/page:7/

Зражевская Т.А., Беляева Л.М. Трудности перевода с английского языка на русский (на материале газетных статей). М.: Международные отношения, 1972

Ex. 14. Translate into Russian.

1. With the main political parties deadlocked after inconclusive election, the tribes are courted as potential allies by leaders on all sides, and could act as one of several power-brokers.

2. Britain could emerge from all this smaller, more inward-looking and with less clout in the world (and, possibly, with its politics fractured).

3. More fundamentally, the world has quickly become multi-polar, with the EU a larger economic player than the US while China rises quickly on all measures of hard and soft power.

4. With no one clear threat to the alliance and with so many divergent interests among its membership, the Group of Experts recommendations were largely incompatible.

5. Connectivity is increasing, with the number of Internet users and telephone subscribers expanding worldwide.

6. With a record 4.33 m jobless in March and GDP growth at just 0.6%, that prospect looks highly unlikely.

7. With non-predatory neighbors to its north and south and fish to its east and west, the United States enjoys a level of physical security unprecedented in the history of great and small powers.

8. The Senate Foreign Relations Committee voted 14-3 for the measure, with several committee Republicans joining the Democratic majority in favor.

9. With limited pricing power in competitive international markets and a fixed exchange rate, the competitiveness of the trade sector will be harmed.

10. With more boots on the ground, commanders will have less reason to use the air power which has contributed to a sharp rise in civilian casualties and has raised tensions with the Afghan government.

11. With Japan once considered the region’s most ambitious and belligerent power, no doubt China cannot assume good intentions.

12. With a planned deficit of 5.8% of GDP adding to an already worrying debt pile, stimulus spending is impossible.

13. With mid-term elections in November, the idea of Mr. Obama joining forces with Republican reformers may seem fanciful.

14. With insufficient institutional development, the chances for either dictatorship or anarchy proliferate.

Source: https://studfile.net/preview/1197091/page:7/

Зражевская Т.А., Беляева Л.М. Трудности перевода с английского языка на русский (на материале газетных статей). М.: Международные отношения, 1972

Part 2. KEY MANAGEMENT RESPONSIBILITIES

Ex. 1. Skim the article about key management responsibilities to find out:

• what acronym ‘S.M.A.R.T’ stands for;

• what effective goals provide for.

Comment on the ideas of the article.

Translate the article into Russian.

Summarize the article.

Key Management Responsibilities: Developing Goals

The first responsibility of management is to give others vision and the ability to perform. Such vision can be established by means of a total system of network of goals. Goals must satisfy several criteria in order to ensure that they provide individuals with the kind of focus, direction, and understanding they need to perform well. The acronym ‘S.M.A.R.T’ identifies the key criteria for effective goals. Each should be specific enough for focus and feedback, meaningful enough to motivate individuals, accepted by the participants, realistic yet challenging, and time-framed.

The benefits are numerous. Goals that are ‘S.M.A.R.T’ and challenging provide consistency throughout the organization, a blueprint for effectiveness. They ensure that individuals focus on achieving the organization’s goals rather than on satisfying their own needs. Effective goals provide a basis for cooperation and team work. They ensure that the efforts of the different units in the organization are coordinated. Lastly, they are an integral part of the decision-making process in that they provide decision-makers with the criteria for generating and evaluating options.

Despite the advantages that a total system of goals provides, there are still challenges for management. In areas where output or performance is not easily measured, such as service or management, defining specific goals is more difficult. In addition, goals that are too challenging can cause stress and burnout for the participants. Finally, goals that are too narrow in focus can be counterproductive.

As significant as these challenges are, they have not diminished the commitment of organizations to develop effective goal-based systems. To achieve the full impact of these systems, certain conditions must be met. First separate goals must be woven into a system or a network. Goals are most effective when they are defined for every task and area of the organization and where they all work in synergy to move the organization toward achieving its purpose.

Second, goals must be prioritized. Organizations have complex, sometimes competing goals. Care must be taken to establish priorities, identifying which goals are more important.

Third, benchmarking, or setting goals from the outside in, has become an imported management task in the 1990s. Comparing goals of other companies and copying what they do to achieve them is a process that improves the effectiveness of individuals and organizations alike. Rather than reject methods that were: ‘not invented here’, managers are looking to openly benchmark their activities against the best-performing companies to ensure that their goals are the right ones.

Finally, building flexibility into the system is essential. Goals must be reviewed and revised to ensure that they are the right ones for the changing environment.

Ex. 2. Add nouns to the words in the box to form collocations with the following adjectives. Translate these collocations into Russian. Think of your own sentences with these collocations.

total • challenging • time-framed • counterproductive •
goal-based prioritized • best-performing • complex •
competing • effective

Ex. 3. Paraphrase and translate the underlined sentences.

Ex. 4. Complete the dialogue.

N.: What is goal-setting?

P.: Goal-setting is ______________ . It is designed to ______________ of an organization.

N.: The purpose?

P.: ______________ .

N.: How is it implemented?

P.: The first thing is _____________ . But it is very important that ______________ .

N.: Who is involved into the process?

P.: Every employee provides ______________ . ______________ for the goals to be achieved. ______________ is essential. Moreover, ______________ .

Ex. 5. Complete the mindmap using the words from the box. Check your answers in class and with your teacher, prove your point of view. Use the mindmap for rendering the article.

management • collaborative goal-setting • feedback • fixing of the time period • strategy • the employees • performance review and revision

UNIT 3

Lead-in

• Is ‘the public service’ a synonym for ‘the civil service’?

• Who are civil servants and what is their role?

• Does the Russian government have public or civil servants working for it? Substantiate your answer.

Part 1. CIVIL SERVICE

Ex. 1. Skim the text below to find out:

• the ways the Civil Service carries out practical and administrative work;

• the core values of a civil servant.

Look up in the dictionary the words highlighted in the text below. Comment on their meaning.

The British Civil Service

The Civil Service carries out the practical and administrative work of government. Civil servants are politically impartial employees, who carry out the policies of the government departments under the control of elected ministers. In general use, the term ‘civil servant’ in the United Kingdom does not include all public sector employees; although there is no legal definition, the term is usually defined as ‘a servant of the Crown working in a civil capacity who is not the holder of a political (or judicial) office’. As such, the Civil Service does not include government ministers (who are politically appointed), members of the British Armed Forces, police officers, local government officials, members of a National Health Service, or staff of the Royal Household.

There are two other separate Civil Services in the United Kingdom, one for Northern Ireland and another for foreign affairs known as His Majesty’s Diplomatic Service. Like all servants of the Crown, civil servants are legally barred from standing for election as Members of Parliament or any other political office. Also, members of the Senior Civil Service are barred from holding office in a political party or publicly expressing controversial political viewpoints, while less senior civil servants at an intermediate level must generally seek permission to participate in political activities. The Civil Service has no separate responsibility. The duty of a civil servant is to the minister in charge of the department where they are serving. A change of minister does not involve a change in staff. About half of all civil servants provide services direct to the public.

These include paying benefits and pensions, running employment services, staffing prisons, issuing driving licences, and providing services to industry and agriculture. Around one in five are employed in the Ministry of Defence and its agencies. The rest are divided between central administrative duties, support services, and services that are largely self-supporting. In June 2006 a current Civil Service Code was introduced which outlines the core values and standards expected of civil servants. The core values are defined as integrity, honesty, objectivity, and impartiality. The Civil Service Commissioners’ Recruitment Code is based on the principle of selection on merit on the basis of fair and open competition.

As Minister for the Civil Service, the Prime Minister is responsible for central coordination and management of the Civil Service. He is supported by the Head of the Home Civil Service, who chairs the Civil Service Management Board.

Ex. 2. For sentences 1—7 choose the variant (a, b), which fits best according to the text.

1. Civil servants carry out the policies of the government departments under

____________________

a) the supervision of Members of Parliament;

b) the control of elected ministers.

2. The term ‘civil servant’ in the UK ____________________

a) does not cover all public sector employees;

b) includes all public sector employees.

3. Civil servants are legally barred from ____________________

a) holding office in a political party;

b) taking part in recruitment based on some kind of competition.

4. The duty of a civil servant is to ____________________

a) the Prime minister;

b) the minister in charge of the department where they are serving.

5. A change of minister of the department where civil servants are serving

____________________

a) does not mean changing in staff;

b) involves a change in staff.

6. The document which outlines the core values and standards expected of civil servants is ____________________

a) Civil Service Act;

b) Civil Service Code.

7. Minister for the Civil Service is supported by ____________________

a) the Head of the Home Civil Service;

b) the Queen.

Ex. 3. Summarize the text.

Ex. 4. Read the text below and match the words in bold type to their Russian equivalents below.

Home Civil Service

His Majesty’s Civil Service, also known as the Home Civil Service, is the permanent bureaucracy of Crown employees that supports UK Government Ministers and the devolved administrations in Wales and Scotland. Ministers are responsible to the Sovereign and Parliament and the Scottish Parliament in administering the United Kingdom, but their executive decisions are implemented by civil servants, who are employees of the Crown and not Parliament. Civil servants also have some traditional and statutory responsibilities which to some extent protect them from being used for the political advantage of the party in power. Senior civil servants may be called to account to Parliament.

In general use, the term ‘civil servant’ in the United Kingdom does not include all public sector employees; although there is no fixed legal definition, the term is usually defined as ‘a servant of the Crown working in a civil capacity who is not the holder of a political (or judicial) office; the holder of certain other offices in respect of whose tenure of office special provision has been made; [or] a servant of the Crown in a personal capacity paid from the Civil List[15]’. As such, the Civil Service does not include government ministers (who are politically appointed), members of the British Armed Forces, police officers, local government officials, members of a National Health Service, or staff of the Royal Household. As of 2003, there are approximately 450,000 civil servants in the Home Civil Service.

Source: Wikipedia, the free encyclopedia

a) ....................... |  —  | придворные, королевский двор
b) ....................... |  —  | правящая партия
c) ....................... |  —  | особые условия или указания
d) ....................... |  —  | политическая государственная должность, политический/партийный пост
e) ....................... |  —  | престол, верховная власть
f) ....................... |  —  | монарх, суверенный правитель
g) ....................... |  —  | Государственная служба здравоохранения
h) ....................... |  —  | срок пребывания в должности
i) ....................... |  —  | установленные законом обязанности

Ex. 5. Match the words on the right to those on the left to make collocations from ex. 4. Translate them into Russian.

1) executive | a) advantage
2) statutory | b) capacity
3) political | c) definition
4) legal | d) ministers
5) government | e) decisions
6) civil | f) responsibilities
7) personal | g) office

Ex. 6. Paraphrase the underlined words and sentences in ex. 4 and/or explain their meaning.

Ex. 7. Translate the text of ex. 4 ‘Home Civil Service’ into Russian.

Ex. 8. Supply each definition with the correct heading from the box.
Which term — ‘the Public service’ or ‘the Civil service’ — is more general?

Public opinion • Public sector • the Public service
Public funding • Public health • Public spending • Public works
the Civil Service • Public ownership • Public law

1) a law which concerns the general public ____________________________;

2) the part of law concerned with the relations of the state with people and the activities, rights, and duties of the government and its departments ____________________________;

3) the opinion, views, or beliefs held by the general public on subjects of national interest or importance ____________________________;

4) buildings, roads, ports, etc., provided by the government for public use ____________________________;

5) money given by the government for activities or organizations for the public use ____________________________;

6) those industries and services in a country that are owned and run by the state ____________________________;

7) health care for the public provided by the government or local authority and including preventive medicine, sanitation, and hygiene in public places ____________________________;

8) the money spent by local and central government and public organizations on things such as roads, schools, housing, etc.